minimizing risk under the clean water act

Transcription

CLAYTON ET AL. FINAL 4/26/15
4/27/2015 3:07 PM
MINIMIZING RISK UNDER THE CLEAN WATER ACT
Carol Clayton
H. David Gold
Brent Gurney
Mark Kalpin
Alexander White
Synopsis: The Federal Water Pollution Control Act—more commonly known as
the Clean Water Act—establishes a stringent regulatory and permitting regime
governing the discharge of pollutants into rivers, streams, wetlands, and other
“navigable waters.” The statute also addresses accidental releases of oil and
hazardous substances, and imposes spill prevention, reporting, planning, and
response requirements on the regulated community, as well as civil and criminal
penalties for unauthorized discharges. The energy industry faces substantial legal
risk under the Clean Water Act because (1) many of its operations are subject to
Clean Water Act regulatory and permitting requirements, (2) the industry’s core
activities—oil and gas exploration and production, storage, transportation,
processing, and refining—are technically and operationally difficult and pose
inherent risks of accidental releases, (3) federal authorities have targeted the
industry for enforcement, (4) the statute provides for onerous civil and criminal
penalties, and has been interpreted by several courts to allow the imposition of
criminal fines and imprisonment for violations caused by simple negligence, and
(5) in certain circumstances, the statute automatically disqualifies violators from
receiving energy supply and other federal contracts, as well as federal oil and gas
leases.
Energy companies can minimize their exposure to Clean Water Act
regulatory enforcement actions by implementing strong compliance programs,
including compliance audits. But meeting regulatory requirements and permit
conditions is not enough. Energy companies should also have strong risk
management programs designed to prevent accidental releases of oil and
hazardous substances, as well as emergency preparedness and response plans that
enable them to minimize the impacts of any release. Should a regulatory violation
or accidental release nonetheless occur, energy companies may persuade the
government to forgo criminal enforcement and accept reduced civil penalties by
 Partner and Chair of the Environmental Practice at WilmerHale in Washington, D.C. Ms. Clayton
represents clients in environmental, health and safety (EHS) regulatory compliance and enforcement defense
matters, including the design and implementation of corporate EHS compliance and risk management systems.
 Special Counsel at WilmerHale in Boston, MA. Mr. Gold represents clients in environmental, energy,
and land use matters, with particular background on Clean Water Act compliance.
 Partner in the Litigation Department at WilmerHale in Washington, D.C. Mr. Gurney represents
clients in complex civil and criminal cases throughout the United States, including environmental enforcement
matters.
 Partner and Co-Chair of the Energy and Cleantech industry group at WilmerHale in Boston, MA. Mr.
Kalpin advises clients in all aspects of energy, environmental, and natural resources law
 Senior Associate at WilmerHale in Washington, D.C. Mr. White represents clients in litigation and
enforcement matters, including criminal proceedings.
69
70
4/27/2015 3:07 PM
ENERGY LAW JOURNAL
[Vol. 36:69
taking steps spelled out in federal enforcement policies and guidelines. These
steps include promptly reporting a known or suspected violation, remediating
environmental damage and other harm caused by the violation, and implementing
corrective measures to prevent a recurrence.
I. Introduction ...................................................................................... 70 II. The Clean Water Act Creates the Potential for Significant Civil and
Criminal Liability and Collateral Consequences ............................. 73 A. Clean Water Act Programs ....................................................... 73 B. Enforcement under the Clean Water Act .................................. 74 C. Collateral Consequences: Disqualification, Suspension, and
Debarment ................................................................................. 76 III. The Prevailing Legal Standards Give Prosecutors Broad
Discretion ......................................................................................... 78 A. Simple or Gross Negligence Standard for Misdemeanors? ...... 78 B. Grounds for Challenging the Simple Negligence Standard ...... 81 C. Enforcement Authorities Have Broad Discretion in Deciding
Whether to Bring Criminal or Civil Charges ............................ 84 IV. Effective Compliance and Risk Management Programs are Critical 86 A. Effective Compliance Programs May Help Avoid Enforcement
and Reduce Penalties under Federal Policies and Guidelines ... 87 B. Elements of an Effective Compliance Program under Federal
Enforcement Policies and Guidelines ....................................... 90 C. Special Considerations for Energy Companies ......................... 92 V. Conclusion ....................................................................................... 94 I. INTRODUCTION
Energy companies—as well as their officers, employees, and contractors—
face significant legal risk under the Clean Water Act for a number of reasons,
including: the statute’s applicability to a wide range of energy industry activities,
imposition of liability for purely accidental discharges of oil and hazardous
substances, and onerous penalty provisions; judicial precedents construing the
statute to criminalize simple negligence; and a lengthening string of successful
enforcement actions against companies and individuals representing virtually
every sector of the industry. Indeed, the U.S. Environmental Protection Agency
(EPA), which has principal responsibility for administering and enforcing the
Clean Water Act, has specifically targeted the industry’s upstream sector for
enforcement under the Clean Water Act and other federal environmental statutes.1
The following sampling of enforcement cases against companies and
individuals in the energy industry illustrates the range of industry activities that
pose Clean Water Act enforcement risk, as well as the range of potential penalties:
1. EPA’s Office of Enforcement and Compliance Assurance (OECA) sets “National Enforcement
Initiatives” (NEIs) every three years. One NEI currently targets the “Energy Extraction Sector” for the period
2013 through 2016. EPA, OFFICE OF ENFORCEMENT & COMPLIANCE ASSURANCE, FY 2014 NATIONAL
PROGRAM
MANAGER
GUIDANCE
3,
8
(2013),
available
at
http://nepis.epa.gov/Exe/ZyPURL.cgi?Dockey=P100H18X.txt.
2015]
4/27/2015 3:07 PM
MINIMIZING RISK UNDER THE CWA
71

In February 2015, Duke Energy agreed to plead guilty to negligent violations
of the Clean Water Act based on the discharge of coal ash and coal ash
wastewater from electric utility coal ash waste ponds. Under the plea
agreement, Duke Energy would pay $68.2 million in fines and restitution and
$34 million for community service and mitigation.2

In December 2014, XTO Energy entered into a consent agreement requiring
payment of a $2.3 million civil penalty for alleged violations of the Clean
Water Act’s dredge and fill permitting requirements in connection with the
construction of facilities related to extraction of natural gas, including well
pads, freshwater pits, access roads, a pipeline, and a compressor station pad.3

In August 2014, ExxonMobil Pipeline Company agreed to pay a $1.4 million
civil fine in connection with an oil spill from a crude oil pipeline rupture.4

In June 2014, a federal district court found a petroleum barge owner and
operator and the captain of the barge guilty of negligently violating the Clean
Water Act in connection with oil discharges from the barge. The court
determined that the defendants negligently vented combustible vapors from
the cargo hold of the barge, causing an explosion hazard that ultimately
resulted in the death of a crew member and the release of thousands of gallons
of oil.5 As of the time of this writing, sentencing had not yet occurred and was
set for April 29, 2015.6

In March 2014, the individual owner of a gauging service company entered a
plea agreement for the negligent discharge of pollutants in violation of the
Clean Water Act.7 In this case, the defendant was a contractor retained to
measure the amount of oil contained in storage tanks at an oilfield exploration
site. Investigators found an “unauthorized bypass built into containment at
2. News Release, Duke Energy, United States Reach Proposed Agreement on Dan River (Feb. 20, 2015),
http://www.duke-energy.com/news/releases/2015022002.asp.
3. United States v. XTO Energy Inc., No. 1:14-cv-00218-IMK (N.D. W. Va. Dec. 22, 2014), available
at http://www2.epa.gov/sites/production/files/2014-12/documents/xto-cd14.pdf; XTO Energy, Inc. Settlement–
2014, EPA, available at http://www2.epa.gov/enforcement/xto-energy-inc-settlement-2014 (last updated Jan. 4,
2015).
4. Consent Decree at 4, United States v. ExxonMobil Pipeline Co., No. 3:14-cv-00532-JWD-SCR (M.D.
La. Aug. 26, 2014).
5. Press Release, U.S. Attorney’s Office for the N. Dist. of Ill., U.S. Dep’t of Justice, Barge Captain and
Marine Company Convicted in Fatal 2005 Explosion that Discharged Slurry Oil in Chicago Canal (June 9, 2014),
http://www.justice.gov/usao/iln/pr/chicago/2014/pr0609_01.html.
6. United States v. Egan, No. 1:10-cr-00033 (N.D. Ill. Mar. 12, 2015) (Notification of Docket Entry).
7. Press Release, U.S. Attorney’s Office for the W. Dist. of La., U.S. Dep’t of Justice, Youngsville
Company Owner Pleads Guilty to Negligently Discharging Pollutants into Vermillion River (Mar. 12, 2014),
http://www.justice.gov/usao/law/news/wdla20140312a.html.
72
4/27/2015 3:07 PM
ENERGY LAW JOURNAL
[Vol. 36:69
the site,” and brought charges against the gauger and his company.8 Facing
the possibility of a year in prison and a fine of $100,000 or more, the defendant
agreed that he “negligently discharged or caused the discharge” of a mixture
of produced water and crude oil from the site into a river without a permit.9
The defendant was ordered to pay $10,025.10

Enforcement actions brought under the Clean Water Act in connection with
the 2010 explosion of the Deepwater Horizon and resulting oil spill in the Gulf
of Mexico have produced record-breaking criminal fines. BP Exploration &
Production Inc. (BP), operator of the Macondo offshore lease, pled guilty to a
violation of the Clean Water Act, in combination with other violations, and
was required to pay $4 billion.11 Transocean, BP’s drilling contractor and
owner and operator of the Deepwater Horizon, pled guilty to negligently
discharging oil into the Gulf of Mexico, and paid $400 million in criminal
penalties.12 Transocean also agreed to pay $1 billion in civil penalties.13 The
government continues to litigate against BP and other defendants for civil
penalties under section 311 of the Clean Water Act; civil monetary penalties,
which will be based on the number of barrels of oil spilled, could dwarf the
criminal fines.

In September 2008, CITGO pleaded guilty to the negligent discharge of waste
oil from storm water and wastewater storage tanks at a Louisiana petroleum
refinery and paid a $13 million criminal fine.14 Federal enforcement
authorities are also seeking substantial civil fines in on-going litigation.15
Section II below provides a high-level summary of the Clean Water Act’s
major regulatory programs and civil and criminal enforcement provisions. Section
8. DEP’T OF JUSTICE, APRIL 2014 ENVTL. CRIMES SECTION MONTHLY BULLETIN 9 (2014), available at
http://www.justice.gov/enrd/2014/public_bulletin_April__2014__final.pdf.
9. United States v. Robbie Mouton, No. 6:13-CR-00135 (W.D. La. Mar. 12, 2014) (Stipulated Factual
Basis for Guilty Plea).
10. Id. (Sept. 3, 2014) (Amended Judgment in a Criminal Case).
11. United States v. BP Exploration & Prod., Inc., No. 2:12-cr-00292-SSV-DEK (E.D. La. Nov. 2012),
available at http://www.justice.gov/iso/opa/resources/43320121115143613990027.pdf. Under BP’s plea
agreement, BP’s sentence included payment of criminal recoveries totaling $4 billion, including criminal fines
totaling $1.256 billion. Id.
12. Cooperation Guilty Plea Agreement, United States v. Transocean Deepwater Inc., No. 13-001 “H”
(E.D.
La.
Jan.
3,
2013),
available
at
http://www.justice.gov/sites/default/files/opa/legacy/2013/01/03/transocean-plea-agreement.pdf.
Under
Transocean’s plea agreement, Transocean’s sentence included payment of criminal recoveries totaling $400
million, including a criminal fine of $100 million. Id.
13. Partial Consent Decree, In re Oil Spill by the Oil Rig “Deepwater Horizon” in the Gulf of Mexico,
No.
2:10-md-02179-CJB-SS
(E.D.
La.
Jan.
3,
2013),
available
at
http://www.justice.gov/iso/opa/resources/915201313122945254063.pdf.
14. Plea Agreement at 6, United States v. CITGO Petroleum Corp., No. 2:08-cr-00077-PM-KK (W.D. La.
Sept. 17, 2008).
15. United States v. CITGO Petroleum Corp., No. 2:08-cv-00893-TLM-MEM (W.D. La. June 24, 2008);
United States v. CITGO Petroleum Corp., 723 F.3d 547 (5th Cir. 2013) (remanding case to district court for
further consideration of penalty).
2015]
4/27/2015 3:07 PM
73
III focuses on the statute’s exceptionally broad misdemeanor enforcement
provision, which some courts have construed to criminalize conduct meeting a
simple negligence standard. Finally, Section IV explains how energy companies
can minimize their enforcement exposure under the Clean Water Act by
implementing strong regulatory compliance and risk management programs
tailored to their particular operations.
II. THE CLEAN WATER ACT CREATES THE POTENTIAL FOR SIGNIFICANT CIVIL
AND CRIMINAL LIABILITY AND COLLATERAL CONSEQUENCES
A. Clean Water Act Programs
The Clean Water Act’s overarching goal is “[r]estoration and maintenance of
the chemical, physical and biological integrity of the Nation’s waters.”16 To attain
this objective, the statute establishes:

The National Pollutant Discharge Elimination System (NPDES), a permit
program under section 402 of the Clean Water Act to govern discharges of
pollutants from “point sources” into “navigable waters,” which are defined as
“waters of the United States, including the territorial seas;”17

A pretreatment program under section 307(b)(1),18 which governs indirect
discharges to publicly owned treatment works (POTWs) and requires such
discharges to be “pretreated”19 so that they do not interfere with POTW
treatment processes or contaminate sewage sludge;20

The section 404 permit program, which governs discharges of dredged or fill
material into navigable waters, including wetlands; and

Section 311 authority, which governs spills of oil and other hazardous
substances to navigable waters, adjoining shorelines, or into or upon waters
16. 33 U.S.C. § 1251(a) (2012).
17. 33 U.S.C. § 1362(7) (2013). A “point source” is:
[A]ny discernible, confined and discrete conveyance, including but not limited to any pipe, ditch,
channel, tunnel, conduit, well, discrete fissure, container, rolling stock, concentrated animal feeding
operation, or vessel or other floating craft, from which pollutants are or may be discharged. This term
does not include agricultural stormwater discharges and return flows from irrigated agriculture.
Id. § 1362(14).
18. EPA’s regulations implementing the pretreatment program are codified at 40 C.F.R. pt. 403.
19. “The term Pretreatment means the reduction of the amount of pollutants, the elimination of pollutants,
or the alteration of the nature of pollutant properties in wastewater prior to or in lieu of discharging or otherwise
introducing such pollutants into a POTW.” 40 C.F.R. § 403.3(s) (2005).
20. See
generally
Pretreatment,
EPA,
available
at
http://water.epa.gov/polwaste/npdes/pretreatment/index.cfm (last visited Apr. 6, 2015); Unconventional
Extraction
in
the
Oil
and
Gas
Industry,
EPA,
available
at
http://water.epa.gov/scitech/wastetech/guide/oilandgas/unconv.cfm (last visited Apr. 6, 2015); Process
Wastewater−Indirect Discharge to Publically Owned Treatment Works (POTWs), NATURAL GAS EXTRACTION
PORTAL, available at http://envcap.org/energy/id_potw.cfm (last visited Apr. 6, 2015).
74
4/27/2015 3:07 PM
ENERGY LAW JOURNAL
[Vol. 36:69
of the contiguous zone, and establishes requirements for preventing, reporting,
and responding to spills.
EPA has principal responsibility for administering and enforcing the Clean
Water Act. However, the statute provides for a dual federal/state regulatory
scheme under which EPA may delegate regulatory and enforcement authority to
states whose programs meet standards set by EPA.21 Even in delegated states,
however, EPA retains independent enforcement authority.22
Other federal agencies share regulatory and enforcement responsibility with
EPA under certain Clean Water Act programs. For example, EPA and the U.S.
Army Corps of Engineers (Corps) jointly administer the section 404 permitting
program for discharges of dredged or fill material. Similarly, spill prevention and
response authority under section 311 is allocated among EPA, the U.S.
Department of the Interior (DOI), and the U.S. Department of Transportation
(DOT).23 EPA is responsible for non-transportation-related offshore facilities
located landward of the coast line; DOT is responsible for transportation-related
facilities, including pipelines, located landward of the coast line; and DOI is
responsible for facilities, including pipelines, located seaward of the coast line.24
B. Enforcement under the Clean Water Act
The Clean Water Act provides a variety of enforcement tools and remedies.
Depending on the violation, EPA may seek administrative, civil, or criminal
penalties and obtain injunctive relief.25 EPA refers more serious civil cases and
all criminal cases to the U.S. Department of Justice (DOJ) to litigate.26 In criminal
cases, EPA’s criminal enforcement program assists prosecutors by providing
evidence, forensic analyses, and legal guidance.27
21. 33 U.S.C. § 1251(b) (calling for states to manage permit programs under the Clean Water Act). This
article focuses on federal enforcement; state enforcement actions and related policies often employ the same
general principles as their federal counterparts.
22. 33 U.S.C. § 1342(i) (2014) (“Nothing in this section shall be construed to limit the authority of the
[EPA] Administrator to take action pursuant to section 1319 of this title.”); see also 33 U.S.C. § 1342(d)
(authorizing EPA to veto a proposed permit if it concludes that the permit violates the Clean Water Act).
23. Exec. Order 12777, 56 Fed. Reg. 54,757 (Oct. 22, 1991). The Coast Guard retained its delegated
responsibilities under section 311 when Congress transferred the agency from DOT to the Department of
Homeland Security. Homeland Security Act of 2002, Pub. L. No. 107-296, § 888(b)-(c), 116 Stat. 2135, 2249
(2002).
24. Memorandum of Understanding Among the Secretary of the Interior, Secretary of Transportation, and
Administrator of the Environmental Protection Agency, 40 C.F.R. pt. 112, app. B (2000).
25. 33 U.S.C. §§ 1319(b) (injunctive relief), (c) (criminal penalties), (d) (civil penalties), (g)
(administrative penalties) (2014); 33 U.S.C. §§ 1321(b)(6)(B) (administrative penalties for unauthorized releases
of oil or hazardous substances), (b)(7) (civil penalties for unauthorized releases of oil or hazardous substances)
(2014).
26. EPA, Guidance on Choosing Among Clean Water Act Administrative, Civil and Criminal
Enforcement Remedies (Aug. 28, 1987).
27. OCEFT At a Glance, Office of Enforcement, Forensics and Training, EPA.GOV, available at
http://www2.epa.gov/sites/production/files/2013-11/documents/oceft-at-a-glance_0.pdf (last visited Apr. 6,
2015).
2015]
4/27/2015 3:07 PM
75
Section 309 of the Clean Water Act authorizes the imposition of penalties on
“any person.”28 For purposes of enforcement, “person” is broadly defined to
include, among others, an “individual, corporation, . . . association,” and “any
responsible corporate officer.”29 Section 311 provides for the imposition of
penalties for unauthorized discharges of oil or hazardous substances on “[a]ny
person who is the owner, operator, or person in charge of any vessel, onshore
facility, or offshore facility” from which the discharge occurred.30
The current inflation-adjusted maximum fines31 under the Clean Water Act
are:

Administrative penalties: $16,000 per violation or per day, up to a total of
$187,500;32

Civil penalties for NPDES or section 404 permit program violations: $37,500
per day for each violation;33

Civil penalties for section 311 violations: $37,500 per day or $2,100 per barrel
of oil discharged;34

Civil penalties for section 311 violations resulting from gross negligence or
willful misconduct: $150,000 minimum or $5,300 per barrel;35

Criminal penalties:
o Negligent violations: $25,000 per day of violation for first conviction,
$50,000 per day for subsequent convictions;36 and
o Knowing violations: $50,000 per day of violation for first conviction,
$100,000 per day for subsequent convictions.37
Monetary penalties for criminal violations can balloon under the Alternative
Fines Act, which provides for the imposition of fines in federal criminal cases in
amounts up to double the loss or gain associated with the violation.38
28. 33 U.S.C. § 1319(a)(1).
29. Id. §§ 1319(c)(6), 1362(5).
30. Id. § 1321(b)(7).
31. These amounts are higher than those listed in the statute due to inflation adjustments under EPA’s
Civil Monetary Penalty Inflation Adjustment Rule, 78 Fed. Reg. 66,643, 66,647-48 (Nov. 6, 2013) (codified at
40 C.F.R. § 19.4).
32. 33 U.S.C. §§ 1319(g)(2)(A)-(B), 1321(b)(6)(B)(i)-(ii).
33. Id. § 1319(d).
34. Id. § 1321(b)(7)(A).
35. Id. § 1321(b)(7)(D).
36. Id. § 1319(c)(1).
37. Id. § 1319(c)(2).
38. Under 18 U.S.C. § 3571(d) (2014),
[i]f any person derives pecuniary gain from the offense, or if the offense results in pecuniary loss to a
person other than the defendant, the defendant may be fined not more than the greater of twice the
76
4/27/2015 3:07 PM
ENERGY LAW JOURNAL
[Vol. 36:69
Individuals convicted of violating the Clean Water Act—including
“responsible corporate officers”—face imprisonment in addition to criminal
fines.39 “Knowing” violations are felonies that carry prison sentences of up three
years.40 “Negligent” violations are misdemeanors that carry up to a one-year
prison term.41 As discussed in Section III below, the misdemeanor enforcement
provision of the Clean Water Act is exceptionally broad and has been interpreted
by several courts to incorporate a civil standard of “ordinary” or “simple”
negligence rather than a higher criminal standard of gross negligence.42
C. Collateral Consequences: Disqualification, Suspension, and Debarment
In addition to potential jail time and fines, a criminal conviction under the
Clean Water Act can result in disqualification, debarment, or suspension from
doing business with the federal government. Disqualification is facility-specific
and applies automatically by statute upon conviction of either a misdemeanor or
felony offense.43 Disqualification extends (per EPA’s regulations) to all
gross gain or twice the gross loss, unless imposition of a fine under this subsection would unduly
complicate or prolong the sentencing process.
This provision was invoked to increase the criminal fine imposed on Transocean in the Deepwater Horizon case
by three orders of magnitude, from $200,000 to $100 million. Cooperation Guilty Plea Agreement, supra note
12, at 5. In addition, 18 U.S.C. § 3571(e) provides:
If a law setting forth an offense specifies no fine or a fine that is lower than the fine otherwise applicable
under this section and such law, by specific reference, exempts the offense from the applicability of
the fine otherwise applicable under this section, the defendant may not be fined more than the amount
specified in the law setting forth the offense.
This separate provision has been invoked to increase criminal penalties under the Clean Water Act. See, e.g.,
United States v. Hong, 242 F.3d 528, 533 (4th Cir. 2001) (holding that, although the maximum fine under the
Clean Water Act as the “statute of conviction” was $300,000, a total fine of $1.2 million could be imposed under
the “alternative fine statute”).
39. In Hong, the Fourth Circuit upheld the conviction of the owner of a wastewater treatment facility for
negligently violating pretreatment requirements under the Clean Water Act, based on the discharge of untreated
water by the facility’s employees. Hong, 242 F.3d at 532. The Fourth Circuit cited United States v. Iverson, 162
F.3d 1015, 1025 (9th Cir. 1998), for the conclusion that a “responsible corporate officer” may be someone who
merely has “authority to exercise control over the corporation’s activity that is causing the discharges.” Hong,
242 F.3d at 531. The Fourth Circuit found that, even though the defendant was not formally a corporate officer,
he could be held criminally responsible based on his degree of control over facility operations. Id. at 532.
40. Under 33 U.S.C. § 1319(c)(2),
[a]ny person who . . . knowingly violates section 1311, 1312, 1316, 1317, 1318, 1321(b)(3), 1328, or
1345 of this title, or any permit condition or limitation . . . shall be punished by a fine . . . or by
imprisonment for not more than 3 years, or by both.
41. Under 33 U.S.C. § 1319(c)(1),
[a]ny person who . . . negligently violates section 1311, 1312, 1316, 1317, 1318, 1321(b)(3), 1328, or
1345 of this title, or any permit condition or limitation . . . shall be punished by a fine . . . or by
imprisonment for not more than 1 year, or by both.
As one court has explained it, “an individual commits [this] crime by (1) negligently, (2) discharging, (3) a
pollutant, (4) from a point source, (5) into the navigable waters of the United States, (6) without a permit.” United
States v. Ortiz, 427 F.3d 1278, 1282 (10th Cir. 2005).
42. Ortiz, 427 F.3d at 1283.
43. The Clean Water Act provides:
No Federal agency may enter into any contract with any person, who has been convicted of any offense
under [Clean Water Act] section 1319(c) . . . for the procurement of goods, materials, and services if
such contract is to be performed at any facility at which the violation which gave rise to such conviction
occurred, and if such facility is owned, leased, or supervised by such person.
2015]
4/27/2015 3:07 PM
77
transactions throughout the federal government, and stays in effect until the
violator successfully petitions for reinstatement of the “violating facility.”44
Debarment and suspension are discretionary actions, and unlike
disqualification, can be applied to an entire company, including its affiliates.
Suspension is a temporary and immediate prohibition from participating in
government transactions, which stays in effect for a specified period of time
(generally up to twelve months, although the time can be extended under certain
circumstances).45 Debarment may become effective only after a debarring official
issues a decision, and after giving a company the opportunity to protest.46
Debarment stays in effect for a longer specified period of time (generally not more
than three years, but subject to extensions).47
Federal regulations establish several potential causes for debarment or
suspension,48 and debarring officials may consider several factors in determining
whether to debar or suspend a company.49 Clean Water Act violations may trigger
the suspension or debarment process based on these causes and factors. For
example, EPA has found that a conviction for negligent wastewater discharges in
violation of the Clean Water Act is a basis for debarment.50 Similarly, EPA has
determined that even where a company has paid restitution and pled guilty to
negligent permit violations, “[t]he actual or potential harm or impact that results
or may result from the wrongdoing”51 may be an aggravating factor in a debarment
decision.52 The most prominent recent example of debarment in the energy
industry occurred after the Deepwater Horizon incident, when BP and certain
affiliated companies were prohibited from entering into new contracts with the
federal government, including new deep-water leases in the Gulf of Mexico, for
nearly four years.53
33 U.S.C. § 1368(a).
44. EPA regulations extend disqualification to both covered non-procurement transactions as defined in 2
C.F.R. pt. 180 (2014) and the other agency-specific parts of title 2 of the Code of Federal Regulations and
procurement awards prohibited by the Federal Acquisition Regulation. 48 C.F.R. pt. 9, subpart 9.4 (2001); 2
C.F.R. § 1532.1110 (2007); see generally Statutory Disqualification and Reinstatement under the Clean Air and
Water Acts, 2 C.F.R. pt. 1532, subpart J (2007).
45. See generally 2 C.F.R. §§ 180.700-760 (subpart g).
46. See generally 2 C.F.R. §§ 180.800-885 (subpart h).
47. See generally 2 C.F.R. pt. 180.
48. 2 C.F.R. §§ 180.700 (causes for suspension), 180.800 (causes for debarment).
49. Id. § 180.860.
50. In re DWC Corporation, Case No. 11-0026-00A, 2011 WL 5356837 (EPA Nov. 2, 2011) (EPA Office
of Grants and Debarments) (citing 2 C.F.R. § 180.800(a)(4), which states, “[a] Federal agency may debar a person
for . . . [c]onviction of or civil judgment for . . . [c]ommission of any other offense indicating a lack of business
integrity or business honesty that seriously and directly affects [the person’s] present responsibility.”).
51. 2 C.F.R. § 180.860(a).
52. In re DWC Corp., 2011 WL 5356837, at *5.
53. Press Release, BP U.S. Press Office, BP Reaches Administrative Agreement with EPA Resolving
Suspension and Debarment (Mar. 13, 2014), http://www.bp.com/en/global/corporate/press/press-releases/bpreaches-administrative-agreement-with-epa.html.
78
4/27/2015 3:07 PM
ENERGY LAW JOURNAL
[Vol. 36:69
III. THE PREVAILING LEGAL STANDARDS GIVE PROSECUTORS BROAD
DISCRETION
Among the panoply of federal environmental laws, only the Clean Water Act
and the Clean Air Act provide for the imposition of misdemeanor criminal
penalties for negligence.54 The Clean Air Act makes it a misdemeanor to
negligently release a hazardous air pollutant and thereby place “another person in
imminent danger of death and serious bodily injury.”55 Unlike its Clean Air Act
counterpart, the Clean Water Act negligence provision is not limited to violations
involving human endangerment.56 Because of its broad reach, the Clean Water
Act has become the “principal environmental statute that has been used to
prosecute significant pollution events under a negligence theory.”57 As explained
below, the case law interpreting the meaning of “negligence” under the Clean
Water Act has blurred the line between civil and criminal conduct, leaving
prosecutors substantial discretion to pursue criminal penalties for unintended
violations, including accidents resulting in prohibited releases of oil and hazardous
substances.
A. Simple or Gross Negligence Standard for Misdemeanors?
Section 309(c) of the Clean Water Act authorizes the imposition of criminal
penalties on any person who “negligently” violates any of the statutory provisions
enumerated in section 309(c) or any permit condition or limitation.58 The statute
does not define the term “negligently.” Nor does the statute’s legislative history
shed any real light on what standard of liability Congress intended.59 It has
therefore been left to the courts to determine the applicable standard, and three
United States Courts of Appeals have held that the common law “ordinary” or
“simple” negligence standard applies.60
In Hanousek v. United States, the Ninth Circuit Court of Appeals upheld an
individual defendant’s conviction under the Clean Water Act for “negligently”
54. 33 U.S.C. § 1319(c)(1); 42 U.S.C. § 7413(c)(4) (2013).
55. 42 U.S.C. § 7413(c)(4).
56. Compare 33 U.S.C. § 1319(c)(1) with 42 U.S.C. § 7413(c)(4).
57. Stacey P. Geis, An Accident Waiting to Happen? Prosecuting Negligence-Based Environmental
Crimes, 59(4) U.S. ATTORNEYS’ BULLETIN 33 (July 2011). See also David M. Uhlmann, Prosecutorial
Discretion and Environmental Crime, 38 HARV. ENVTL. L. REV. 159, 186 (2014) (identifying Clean Water Act
as “the most frequently charged environmental statute”).
58. 33 U.S.C. § 1319(c)(1).
59. The government, represented by the Solicitor General, has pointed to statements from U.S.
Representative William Harsha to argue that the simple negligence interpretation is “supported by legislative
history.” Brief for the United States in Opposition, Hanousek v. United States, 528 U.S. 1102 (2000) (No. 99323), 1999 WL 33633015, at *5-6, *9. In opposition to a 1972 amendment that would have created an offense
in the Clean Water Act for violating an order of the Administrator, Rep. Harsha stated, “I would like to call to
the attention of my colleagues the fact that in this legislation we already can charge a man for simple negligence,
we can charge him with a criminal violation under this bill for simple negligence.” Id. at *9 (citing 118 Cong.
Rec. 10,644 (1972)). Because the Supreme Court denied certiorari in Hanousek, and because courts have
decided cases regarding the interpretation of “negligently” based on the plain language of the statute, courts have
not had occasion to determine what weight, if any, a single comment by one legislator should be accorded.
60. Hanousek, 176 F.3d at 1125; Ortiz, 427 F.3d at 1282; United States v. Pruett, 681 F.3d 232, 242 (5th
Cir. 2012).
2015]
4/27/2015 3:07 PM
79
discharging a harmful quantity of oil into navigable waters.61 In that case, the
defendant was the supervisor of a quarrying project when a backhoe operator
struck and ruptured an above-ground petroleum pipeline, discharging between
1,000 and 5,000 gallons of oil into the Skagway River in Alaska.62 The individual
backhoe operator who physically caused the incident worked for a contracting
company hired by the defendant’s employer.63 The defendant was off duty and at
home at the time of the spill.64 The government’s evidence showed that it had
been “customary” during the quarrying project “to protect the pipeline with
railroad ties and fill when using heavy equipment in the vicinity of the pipeline.”65
However, when the defendant took responsibility for supervising the project, this
practice was suspended, which ultimately resulted in the accidental spill.66
The issue in Hanousek was whether simple negligence was sufficient to
establish an offense.67 The district court instructed the jury that it could find the
defendant guilty of a negligent violation for “the failure to use reasonable care.”68
In doing so, the court rejected the defendant’s proposed jury instruction, derived
from the Model Penal Code, which would have defined negligence as “a gross
deviation from the standard of care that a reasonable person would observe in the
situation.”69 The Ninth Circuit upheld the district court’s application of a simple
negligence standard, finding that the legislative purpose is expressed by the
“ordinary meaning” of the language used in a statute, and that the ordinary
meaning of “negligence,” according to Black’s Law Dictionary and the Random
House Dictionary, is a “failure to use such care as a reasonably prudent and careful
person would use under similar circumstances.”70 It reasoned further that if
“Congress intended to prescribe a heightened negligence standard, it could have
done so explicitly” as it did years later under section 311 of the statute, which
imposes increased civil penalties for oil and hazardous substance discharges
resulting from gross negligence or willful misconduct.71 The Ninth Circuit also
rejected Hanousek’s contention that his conviction violated due process because
he did not have notice or actual knowledge that his conduct violated the Clean
Water Act.72 The court concluded that the Clean Water Act constitutes public
welfare legislation and therefore did not require knowledge of the law to sustain a
conviction.73
Hanousek, 176 F.3d at 1125.
Id. at 1119.
Id.
Hanousek, 528 U.S. at 1102.
Id. at 1119.
Id. at 1120-21.
Id. at 1120.
Id. at 1120, 1124; MODEL PENAL CODE § 2.02(d) (2013) (emphasis added).
Hanousek, 176 F.3d at 1120-21 (citing BLACK’S LAW DICTIONARY 1032 (6th ed. 1990); THE RANDOM
HOUSE COLLEGE DICTIONARY 891 (Rev. ed. 1980)).
71. Hanousek, 176 F.3d at 1121.
72. Id. at 1121-22.
73. Id. The Supreme Court denied certiorari in Hanousek, with Justices Thomas and O’Connor dissenting
from the denial on the grounds that the Ninth Circuit erred in finding that the Clean Water Act is a public welfare
statute. Hanousek, 120 S. Ct. at 860. In his dissent, Justice Thomas found that it was “erroneous” to consider
the Clean Water Act public welfare legislation because it does not regulate only “dangerous and deleterious
61.
62.
63.
64.
65.
66.
67.
68.
69.
70.
80
4/27/2015 3:07 PM
ENERGY LAW JOURNAL
[Vol. 36:69
In United States v. Ortiz, the Tenth Circuit Court of Appeals held that the
manager of a propylene glycol distillation facility was properly convicted by the
jury for negligently violating the Clean Water Act based on his repeated disposal
of process wastewater down a toilet.74 The Tenth Circuit rejected the defendant’s
contention that the government would have to prove that he knew the wastewater
would discharge into the Colorado River, holding that it would be sufficient for
the government to show that the defendant was negligent in flushing industrial
wastewater down the toilet.75 The Tenth Circuit cited Hanousek in concluding
that the “ordinary meaning” of negligence is “a failure to exercise the degree of
care that someone of ordinary prudence would have exercised in the same
circumstance”—in other words, the standard of liability is simple negligence.76
The standard was met because investigators had informed Ortiz that they had
traced a black, onion-smelling substance (found to be propylene glycol) from the
river to a storm drain and ultimately to his facility.77 The government presented
evidence that after receiving this notification, Ortiz again dumped propylene
glycol into the toilet.78 Although Ortiz may not have known with certainty that
the material he put in the toilet would flow into the river, the information he
received from the investigators concerning that likelihood made his conduct
negligent in the view of the Tenth Circuit.79
Finally, in United States v. Pruett, the Fifth Circuit reviewed both felony and
misdemeanor convictions of two corporate entities and their President and Chief
Executive Officer (CEO) for multiple Clean Water Act violations at six of the
twenty-eight wastewater treatment plants they owned and operated in Louisiana.80
In upholding felony convictions associated with one of the plants, the court
observed that violations at the plant had occurred nearly constantly over the course
of four years, and the CEO, who was “familiar with his permit obligations,” had
installed an old rail car for use in wastewater treatment even though he knew this
devices,” but also “standard equipment,” and because it imposes penalties more serious than are appropriate for
“public welfare” offenses. Hanousek, 176 F.3d at 1103. Justice Thomas warned that the Ninth Circuit’s
definition of negligence would inappropriately “expose countless numbers of construction workers and
contractors to heightened criminal liability for using ordinary devices to engage in normal industrial operations.”
Id. In 2014, the United States District Court for the Eastern District of Louisiana dismissed due process
challenges to criminal negligence charges, including an alleged Clean Water Act violation under sections
309(c)(1)(A) and 311(b)(3), brought against two BP well-site leaders who were on board the Deepwater Horizon
during the April 20, 2010 explosion. United States v. Kaluza, No. 12-265, 2014 WL 295051, at *6 (E.D. La.
Jan. 27, 2014). The court rejected the defendants’ assumption that “in order to be negligent or grossly negligent,
an external standard of care must exist.” Id. at *5. The court stated that, unlike professional malpractice claims
that typically rely on an external standard, established by expert testimony, the Clean Water Act’s ordinary
negligence and gross negligence standards have “well-settled meanings.” Id. The court concluded that those
standards rely on “common understanding,” and did not need to derive from a specific industry standard. Id. As
a result, the court found that the Clean Water Act was not void for vagueness. Id. at *1.
74. Ortiz, 427 F.3d at 1278-80.
75. Id. at 1279.
76. Id. at 1283.
77. Id. at 1280-81.
78. Id.
79. Id. at 1283-84.
80. Pruett, 681 F.3d at 236-37 (relying on dictionary definitions of negligence to affirm defendant’s
conviction for a “negligent” violation of the Clean Water Act under a jury instruction based on simple
negligence).
2015]
4/27/2015 3:07 PM
81
“unorthodox makeshift” measure was unauthorized.81 The court upheld the
CEO’s misdemeanor conviction under section 309(c) of the Clean Water Act for
negligent operation of another plant based on evidence that four feet of sludge had
accumulated in a tank that normally should have no sludge and that the sludge was
unlawfully discharged into a creek.82 The evidence showed that the CEO was
aware of the “appropriate standard of care,” but allowed the plant to operate in a
manner inconsistent with that standard.83 The CEO contended that the lower court
improperly instructed the jury to apply a simple negligence standard under section
309(c) and should have given a gross negligence instruction based on the Model
Penal Code.84 The Fifth Circuit rejected that argument, finding that “negligence”
is a “plain and unambiguous term” that, according to Black’s Law Dictionary,
means “failure to exercise the standard of care that a reasonably prudent person
would have exercised in a similar situation.”85 As in Hanousek, the Fifth Circuit
pointed to the gross negligence language in section 311 of the statute and observed
that Congress is presumed to have acted intentionally in omitting the language
from section 309.86
B. Grounds for Challenging the Simple Negligence Standard
Although no court has yet interpreted section 309(c) to incorporate a higher
standard of liability than simple negligence, Hanousek and its progeny are not
necessarily the last word on the topic for several reasons.
First, only three circuit courts have addressed the issue, leaving the
opportunity open in the remaining circuits to challenge application of a simple
negligence standard.
Second, it is not clear whether the Supreme Court, as constituted today,
would accept Hanousek’s reasoning, particularly its conclusion that simple
negligence is the appropriate standard because the Clean Water Act constitutes a
public welfare statute.87 The public welfare offense doctrine typically is invoked
to permit the imposition of criminal penalties under strict liability provisions (i.e.,
those that do not require any mens rea whatsoever) of statutes that govern
substances or activities posing particularly serious public safety risks.88 The
doctrine is not a canon of construction and is arguably inapposite in determining
the meaning of “negligence” in section 309 of the Clean Water Act.89
Third, Hanousek, Ortiz, and Pruett did not recognize the importance of the
Model Penal Code as a guide in interpreting criminal statutes. The Supreme Court
has looked to the Model Penal Code as a “source of guidance” where a criminal
statute “provide[d] minimal assistance in determining what standard of intent is
81.
82.
83.
84.
85.
86.
87.
88.
89.
Id. at 239.
Id. at 241.
Id.
Id.
Pruett, 681 F.3d at 242 (citing BLACK’S LAW DICTIONARY 1061 (8th ed. 2004)).
Id. at 246.
Id.
Hanousek, 120 S. Ct. at 860-61 (Thomas, J., dissenting from denial of petition for writ of certiorari).
82
4/27/2015 3:07 PM
ENERGY LAW JOURNAL
[Vol. 36:69
appropriate.”90 The Model Penal Code defines “negligent” crimes as those
involving a “gross deviation from the standard of care that a reasonable person
would observe in the actor’s situation.”91 This is, in fact, consistent with the
common law understanding that “negligence” in the criminal context entails a
gross deviation from the applicable standard of care.92
Fourth, although the court in Hanousek relied on Black’s Law Dictionary to
define “negligently” to mean simple negligence, it failed to recognize that Black’s
distinguishes between civil and criminal negligence, and looked only to Black’s
definition of civil “negligence.”93 Black’s defines “criminal negligence” as
“[g]ross negligence so extreme that it is punishable as a crime.”94
Finally, at least one court has questioned Hanousek’s reasoning that if
“Congress intended to prescribe a heightened negligence standard, it could have
done so explicitly, as it did” years later in section 311 of the Clean Water Act,
which provides for increased civil penalties for discharges of oil resulting from
“gross negligence or willful misconduct.”95 In United States v. Atlantic States
Cast Iron Pipe Co., the defendants were charged with negligently violating the
Clean Water Act by discharging wastewater without a permit.96 The United States
District Court for the District of New Jersey held that because Hanousek was the
leading appellate case “interpreting the definition of negligence” under section
309(c) of the Clean Water Act, criminal penalties could be imposed based on a
90. United States v. U.S. Gypsum Co., 438 U.S. 422, 443-44 (1978).
[T]he language of the [criminal statute at issue] provides minimal assistance in determining what
standard of intent is appropriate, and the sparse legislative history of the criminal provisions is similarly
unhelpful. We must therefore turn to more general sources and traditional understandings of the nature
of the element of intent in the criminal law. . . . The . . . Model Penal Code is one source of guidance
upon which the Court has relied to illuminate questions of this type.
Id. See also Leary v. United States, 395 U.S. 6, 46 n.93 (1969):
Nothing in the legislative history of [the statutory section at issue] is of aid in determining the intended
scope of the word ‘knowing,’ as it is used in that section. In making that determination, we have
employed as a general guide the definition of ‘knowledge’ which appears in the Proposed Official Draft
of the Model Penal Code, at 27 (1962).
91. See generally MODEL PENAL CODE § 2.02(d). Similarly, several state penal codes and the federal
sentencing guidelines define negligent crimes as requiring a “gross” deviation from the applicable standard of
care. See, e.g., TEX. PENAL CODE ANN. § 6.03(d) (West 2003); LA. REV. STAT. ANN. § 14:12 (2007); U.S.
SENTENCING GUIDELINES MANUAL § 2A1.4 cmt. 1 (2011) (criminal negligence is “a gross deviation from the
standard of care that a reasonable person would exercise under the circumstances, but which is not reckless”).
92. See, e.g., State v. Cacchiotti, 568 A.2d 1026, 1030 (R.I. 1990) (explaining that “gross negligence is
equated with the term ‘criminal negligence’”). The overwhelming majority of negligence crimes impose liability
only under the common law/Model Penal Code heightened standard:
The tort-negligence concept . . . applies in only a relatively few modern statutory crimes. More often,
it is a concept applicable to a defense to crime, rather than an element in the crime itself, as in the
defense of self-defense. But for the most part, as we have seen, something more than negligence is
required for criminal liability.
Wayne R. LaFave, 1 SUBSTANTIVE CRIM. L. § 5.4(a)(2) (2d Ed. 2003).
93. Hanousek, 176 F.3d at 1120.
94. BLACK’S LAW DICTIONARY 1838 (10th ed. 2014) (citing Professors LaFave and Scott’s treatise on
Criminal Law and the Model Penal Code) (emphasis added).
95. Hanousek, 176 F.3d at 1121; see also 33 U.S.C. § 1321(b)(7)(D).
96. United States v. Atl. States Cast Iron Pipe Co., No. 03-852 (MLC), 2007 U.S. Dist. LEXIS 56562
(D.N.J. Aug. 2, 2007).
2015]
4/27/2015 3:07 PM
83
“civil or ordinary negligence definition.”97 The district court acknowledged,
however, the Supreme Court’s reasoning in Safeco Insurance Co. v. Burr that
“[t]he vocabulary of the criminal side of [the statute in question] is . . . beside the
point in construing the civil side.”98 Because the Ninth Circuit in Hanousek had
also used language in civil provisions of the Clean Water Act to help interpret the
criminal provisions of the statute—the “type of reasoning [that] was explicitly
rejected” in Safeco—the district court in Atlantic States noted that “there is good
reason to scrutinize carefully that aspect of Hanousek, rather than accepting it as
controlling.”99 On appeal, the Third Circuit did not reach the issue for unrelated
reasons, but expressly left open the possibility that Safeco’s holding could affect
“future case law addressing the Clean Water Act.”100
For the foregoing reasons, a defendant facing misdemeanor charges under
section 309(c) has reasonable grounds to challenge application of the simple
negligence standard and should consider doing so if the facts of the particular case
are sympathetic and can be distinguished from the facts in the three circuit court
decisions. In this regard, it is important to highlight that both Pruett and Ortiz
involved apparently knowing misconduct, while Hanousek involved the
suspension of a “customary” safety practice. Based on these cases and other
precedent, the courts take into account the following factors in determining what
constitutes criminal negligence under section 309 of the Clean Water Act:





The defendant’s position of control, responsibility, or supervisory authority;101
The defendant’s prior notice of possible consequences or risks;102
The degree of departure from industry standards or customary safety
precautions;103
The maintenance of safety measures and equipment;104 and
Any efforts to avoid detection.105
Courts may be more willing to revisit the liability standard under section
309(c) in cases involving purely accidental releases or other unintentional
violations, particularly where the defendant can show that it had strong
compliance and risk management procedures in place. The next section evaluates
97. Id. at *42, *122.
98. Id. at *43 n.17 (citing Safeco Ins. Co. of Am. v. Burr, 551 U.S. 47, 60 (2007)).
99. Id.
100. See generally United States v. Maury, 695 F.3d 227, 258-59 (3d Cir. 2012).
101. See, e.g., Hanousek, 176 F.3d at 1124-25 (Hanousek, who was found negligent, had directed daily
activities at the site, including the failure to protect the pipeline that ruptured.); Hong, 242 F.3d at 532 (upholding
defendant’s conviction for negligence based on his control over company’s finances, including decision not to
purchase filtration media that would have prevented the spill).
102. See, e.g., Ortiz, 427 F.3d at 1284.
103. See, e.g., Hanousek, 176 F.3d at 1124-25; Pruett, 681 F.3d at 241.
104. United States v. Kelly, 238 F.3d 425, 2000 WL 1909397, at *4 (6th Cir. Dec. 28, 2000) (citing
“careless storage” of a toxin as possible basis for negligent violation for its discharge).
105. United States v. Rosenblum, No. 07-294 (JRT/FLN), 2008 WL 4104692, at *2 (D. Minn. Aug. 29,
2008) (jury could reasonably find defendant was negligent where record showed defendant’s company changed
its wastewater discharge procedures when regulators began monitoring, and that defendant reprimanded an
employee for reporting a spike in cyanide levels exceeding company’s permit limit).
84
4/27/2015 3:07 PM
ENERGY LAW JOURNAL
[Vol. 36:69
governmental policies guiding DOJ and EPA in their decision on whether to bring
enforcement actions in the first place, and the nature of the enforcement.
C. Enforcement Authorities Have Broad Discretion in Deciding Whether to
Bring Criminal or Civil Charges
The possibility of a prosecution based on simple negligence places enormous
power in the hands of prosecutors. Although EPA and DOJ have issued a number
of policy pronouncements stating that criminal charges will be brought in only the
most severe cases, they are not enforceable in court and are broadly worded.106
Nevertheless, it is important for energy companies to understand what factors
influence enforcement authorities’ decision-making so they can take the steps that
will best support a bid for leniency in the unfortunate event that a violation occurs.
In deciding whether to proceed with criminal or civil enforcement,
enforcement authorities consider a number of factors.107 In 1987, EPA issued
guidance on when it would refer matters to DOJ for criminal prosecution.108 That
guidance states:
Whether a particular matter should be considered for criminal prosecution will be
determined on the basis of criteria which include the following:
(a) Was the conduct knowing or negligent?
(b) Was the conduct egregious in nature (e.g., a blatant disregard for commonly
known requirements)?
(c) Did the conduct cause foreseeable environmental harm?
(d) Was the conduct characteristic of a type which especially should be deterred?
(e) Was the violator from a category to which it is especially important to convey a
deterrent message?
(f) Did the conduct involve a particularly dangerous material?
(g) Did the violation reflect conduct by responsible corporate officers or employees?
This list should not be considered exclusive, and other circumstances may arise which
also make a particular matter appropriate for criminal prosecution.109
In 1991, DOJ issued a policy memorandum for environmental cases stating
that the exercise of prosecutorial discretion should be based on the following
factors: (1) voluntary disclosure; (2) cooperation; (3) preventative measures and
compliance programs; (4) pervasiveness of noncompliance; (5) internal
disciplinary action; and (6) efforts to remedy ongoing noncompliance.110 The DOJ
memorandum set forth a “goal of encouraging critical self-auditing, self-policing,
and voluntary disclosure.”111 Similar principles appear in the U.S. Attorney’s
Manual.112
106. See generally Factors in Decisions on Criminal Prosecutions for Environmental Violations in the
Context of Significant Voluntary Compliance or Disclosure Efforts by the Violator, U.S. DEP’T OF JUSTICE (July
1, 1991) [hereinafter DOJ Factors], available at http://www.justice.gov/enrd/3058.htm.
107. Id.
108. Guidance on Choosing Among Clean Water Act Administrative, Civil and Criminal Enforcement
Remedies, supra note 26.
109. Id. at 4-5.
110. DOJ Factors, supra note 106.
111. Id.
112. See generally Dep’t of Justice, U.S. Attorney’s Manual, 9-27.000 (Principles of Federal Prosecution),
and 9-28.000 (Principles of Federal Prosecution of Business Organizations), available at
http://www.justice.gov/usao/eousa/foia_reading_room/usam/title9/title9.htm.
2015]
4/27/2015 3:07 PM
85
In 1994, the EPA Office of Criminal Enforcement issued a policy
memorandum entitled “The Exercise of Investigative Discretion.”113 The
memorandum stated that criminal enforcement “should target the most significant
and egregious violators.”114 The memorandum sets out “factors that distinguish
cases meriting criminal investigation from those more appropriately pursued
under administrative or civil judicial authorities.”115 These factors include
whether: actual harm was evident or the threat of significant harm may be
demonstrated; a violator failed to self-report; a violation was part of an industry
trend; or culpable conduct occurred (such as deliberate misconduct, concealment
of misconduct, falsification of records, tampering with monitoring or control
equipment, operations without required permits, and a history of repeated
violations).116
More recent commentary echoes this guidance.117 A 2011 article in the
United States Attorneys’ Bulletin listed hypothetical questions a prosecutor might
ask when deciding whether to bring criminal charges.118 These questions pertain
to the type of industry involved (e.g., “highly regulated” or not); the nature of the
violation (e.g., a paperwork violation or a substantive violation, caused by one
negligent act or a series of proximate causes); whether the company complied with
industry standards; whether the company had a strong environmental compliance
program and provided sufficient funding for it; whether the company trained
employees appropriately; and whether the company committed similar violations
in the past or had other warnings of its compliance risks.119 The author asserted
that “a prosecutor may consider actual harm or potential for harm that resulted
from the negligent conduct,” but conceded that “harm is not generally an element
of a water pollution violation.”120 The author specifically called out the energy
industry as the “type of industry” for which prosecutors may appropriately
determine that negligent conduct should be criminally prosecuted.121 This position
is based on the premise that the energy industry is “highly regulated” and therefore
“involve[s] dangerous activity that can have disastrous consequences if something
goes wrong” such as “oil spills, pipeline explosions, [and] refinery leaks.”122
In evaluating the real-world risks of criminal prosecution for “negligent”
violations under the Clean Water Act, it is important to consider the government’s
actual track record. A recent study conducted by David Uhlmann, former chief of
113. Memorandum from Earl E. Devaney, Dir., Office of Criminal Enforcement, EPA, to All EPA
Employees Working in or in Support of the Criminal Enforcement Program 2 (Jan. 12, 1994), available at
http://www2.epa.gov/sites/production/files/documents/exercise.pdf.
114. Id. at 3-6.
115. Id. at 1.
116. Id. at 3-6. These concepts were integrated into EPA’s “Audit Policy” in 2000, as discussed infra in
Section IV.
117. See, e.g., Geis, supra note 57.
118. Id. at 39-40.
119. Id.
120. Id. at 42.
121. Id. at 33-34, 43-44. At the time her article was published, Geis was listed as the Environmental Crimes
Coordinator for the U.S. Attorney’s Office in San Francisco. Id. at 45.
122. Id. at 43 (“highly regulated industries such as the oil industry, the pipeline industry, the chemical
manufacturing industry, the nuclear industry, the shipping industry, and the drilling industry”).
86
4/27/2015 3:07 PM
ENERGY LAW JOURNAL
[Vol. 36:69
the Environmental Crimes Section at DOJ, concluded that, while only “a small
percentage” (3.9%) of Clean Water Act defendants between 2005 and 2010 were
prosecuted “solely for negligence” (i.e., “in the absence of knowing violations,
significant harm, or deceptive conduct),”123 the total number of defendants
charged with negligence (129 of 307 defendants) “appeared high.”124 This number
may be influenced by the government’s use of the negligence charge in plea
bargaining, with defendants pleading to misdemeanor “negligent” violations to
avoid more serious charges, as a different study suggested in 2002.125 The study
ultimately found that conduct involving an “aggravating factor”—which Professor
Uhlmann defined for purposes of the study as “(1) significant environmental harm
or public health effects; (2) deceptive or misleading conduct; (3) operating outside
the regulatory system; or (4) repetitive violations”126—was present in 91% of
prosecutions for negligence under the Clean Water Act.127 However, Professor
Uhlmann considered violations that exceeded one day in duration to be “repetitive
violations.” Because the failure to correct a violative condition can be charged as
a separate violation under the Clean Water Act, the percentage of criminal
negligence prosecutions under the statute that had no real aggravating factors may
be considerably lower than 91%.128
As demonstrated above, the risk of criminal prosecution under the Clean
Water Act—including for ordinary negligence—is very real. Energy industry
participants can best protect themselves from this risk by adopting strong
compliance and risk management programs designed to prevent violations from
occurring in the first place, or, if an incident occurs, to present a sympathetic case
for leniency. Section IV below addresses the elements of effective compliance
programs, both from the perspective of governmental enforcement policies and
penalty guidelines and from our own perspective as counsel to energy companies.
IV. EFFECTIVE COMPLIANCE AND RISK MANAGEMENT PROGRAMS ARE
CRITICAL
Federal enforcement policies and guidelines incentivize the implementation
of robust corporate compliance programs—including auditing—by providing for
lenient treatment of a company that demonstrates it has an effective program. This
section first explains how federal policies incentivize the development of
compliance programs. The section next summarizes the elements of effective
compliance programs, as defined in enforcement policies and guidelines. Finally,
this section concludes with a few observations about program features that are
particularly important for energy companies.
123. Uhlmann, supra note 57, at 187-88 (emphasis added).
124. Id. at 186.
125. Id. at 216 n.123 (citing Steven P. Solow & Ronald A. Sarachan, Criminal Negligence Prosecutions
Under the Federal Clean Water Act: A Statistical Analysis and an Evaluation of the Impact of Hanousek and
Hong, 32 ENVTL. L. REP. 11153 (2002) (concluding that a majority of negligence charges resulted from “knowing
conduct [being] pleaded down to negligence, or were accompanied by false statements or other deceptive
conduct”)).
126. Id. at 164.
127. Id. at 208.
128. Of the 307 Clean Water Act cases in Professor Uhlmann’s data set, 62 (or 20%) did not involve
repetitive violations. Id. at 212.
2015]
4/27/2015 3:07 PM
87
A. Effective Compliance Programs May Help Avoid Enforcement and Reduce
Penalties under Federal Policies and Guidelines
Federal enforcement authorities may forgo enforcement altogether—or at
least reduce the penalties sought—if a corporate defendant demonstrates that it
has an effective compliance program.129 “Effective programs do not guarantee
immunity from prosecution, but the existence of a qualifying compliance program
may influence a prosecutor’s decision to prosecute.”130 By contrast, an ineffective
program for corrective and preventive action can increase legal liability. For
example, a company’s failure to follow its own compliance policies or to correct
compliance problems detected in an audit could expose the company to charges
of a knowing or willful violation.131
In deciding whether and how to proceed with civil enforcement under the
Clean Water Act, EPA is guided by three separate policies: (1) Interim Clean
Water Act Settlement Penalty Policy; (2) Civil Penalty Policy for Section
311(b)(3) and Section 311(j) of the Clean Water Act; and (3) Clean Water Act
Section 404 Settlement Penalty Policy.132 These policies set forth “how [EPA]
generally expects to exercise its enforcement discretion in deciding on an
appropriate enforcement response and determining an appropriate settlement
penalty,”133 with an overarching goal of requiring “alleged violators to promptly
correct the violations and remedy any harm caused by the violations.”134 When
determining whether to impose civil or administrative penalties, as well as the
magnitude of such penalties, the policies require EPA to pursue four goals: (1)
deterring noncompliance; (2) creating a “level playing field by ensuring that
violators do not obtain an economic advantage over their competitors;” (3)
ensuring consistency across the country (to avoid “pollution havens”); and (4)
promoting “swift resolution.”135
EPA’s policies provide for the assessment of penalties based on the factors
set forth in the Clean Water Act, but allow for case-by-case adjustments.136 To
129. Melissa Ku & Lee Pepper, Corporate Criminal Liability, 45 AM. CRIM. L. REV. 275, 297 (2008).
130. Id. at 300.
131. Id. at 298. See also Memorandum from Earl E. Devaney, supra note 113, at 6 (“Corporate culpability
may also be indicated when a company performs an environmental compliance or management audit, and then
knowingly fails to promptly remedy the noncompliance and correct any harm done.”).
132. ENVTL. PROT. AGENCY, INTERIM CLEAN WATER ACT SETTLEMENT PENALTY POLICY (1995)
[hereinafter
CWA
SETTLEMENT
PENALTY
POLICY],
available
at
http://www2.epa.gov/sites/production/files/documents/cwapol.pdf; OFFICE OF ENFORCEMENT & COMPLIANCE
ASSURANCE, ENVTL. PROT. AGENCY, CIVIL PENALTY POLICY FOR SECTION 311(B)(3) AND SECTION 311(J) OF
CLEAN
WATER
ACT
(1998)
[hereinafter
311
POLICY],
available
at
THE
http://www2.epa.gov/sites/production/files/documents/311pen.pdf; OFFICE OF ENFORCEMENT & COMPLIANCE
ASSURANCE, ENVTL. PROT. AGENCY, CLEAN WATER ACT SECTION 404 SETTLEMENT PENALTY POLICY (2001)
[hereinafter 404 POLICY], available at http://water.epa.gov/type/wetlands/outreach/upload/404pen.pdf.
133. CWA SETTLEMENT PENALTY POLICY, supra note 132, at 3; see also 311 POLICY, supra note 132, at
1; 404 POLICY, supra note 132, at 2.
2.
4.
136. 33 U.S.C. § 1319(d) (listing the following factors: “the seriousness of the violation or violations, the
economic benefit (if any) resulting from the violation, any history of such violations, any good-faith efforts to
88
4/27/2015 3:07 PM
ENERGY LAW JOURNAL
[Vol. 36:69
qualify for mitigation of penalties, companies should be able to demonstrate that
they have undertaken “good faith efforts to comply” with requirements of the
Clean Water Act before problems arise.137 The policies make clear that, “[t]he
efforts of the violator to achieve compliance or minimize the violations after EPA
or a state has initiated an enforcement action do not constitute ‘good faith’
As a result, the policies encourage companies to develop
efforts.”138
environmental auditing programs139 and generally incentivize investment in
compliance efforts, such as training, by calling for EPA to seek penalties to
recapture the economic benefit of avoiding or delaying such investments.140
EPA’s Audit Policy, which applies to all federal environmental statutes,
including the Clean Water Act, provides incentives for voluntary disclosure of
violations and for implementation of compliance and auditing programs.141 These
incentives include reduction or elimination of gravity-based penalties and EPA
agreement not to recommend criminal prosecution or make routine requests for
audit reports.142 To be eligible for these incentives, companies must voluntarily
discover, promptly disclose, and expeditiously correct violations, and prevent
recurrence of future violations.143 The Audit Policy provides that EPA may waive
gravity-based civil penalties for companies that meet all of these conditions and
systematically discover violations through an environmental audit or compliance
management system.144 The Audit Policy further provides that EPA will not
comply with the applicable requirements, the economic impact of the penalty on the violator, and such other
matters as justice may require”); 33 U.S.C. § 1319(g)(3) (listing the following factors: “the nature, circumstances,
extent and gravity of the violation, or violations, and, with respect to the violator, ability to pay, any prior history
of such violations, the degree of culpability, economic benefit or savings (if any) resulting from the violation,
and such other matters as justice may require”); 33 U.S.C. § 1321(b)(8) (listing the following factors: “the
seriousness of the violation or violations, the economic benefit to the violator, if any, resulting from the violation,
the degree of culpability involved, any other penalty for the same incident, any history of prior violations, the
nature, extent, and degree of success of any efforts of the violator to minimize or mitigate the effects of the
discharge, the economic impact of the penalty on the violator, and any other matters as justice may require”);
311 POLICY, supra note 132, at 3. In CITGO, for example, the district court’s penalty analysis credited the
company for its compliance program under the statutory factor “The Nature, Extent, and Degree of Success of
any Efforts of the Violator to Minimize or Mitigate the Effects of the Discharge.” United States v. Citgo
Petroleum Corp., 2011 U.S. Dist. LEXIS 158345, at *10-12 (W.D. La. Sept. 29, 2011). On appeal, the Fifth
Circuit expressed no concern with that aspect of the penalty analysis. United States v. Citgo Petroleum Corp.,
723 F.3d 547, 553 (5th Cir. La. 2013).
137. 404 POLICY, supra note 132, at 15 n.32.
138. Id. at 18 n.41; CWA SETTLEMENT PENALTY POLICY, supra note 132, at 16 n.17.
139. CWA SETTLEMENT PENALTY POLICY, supra note 132, at 13 (Environmental Auditing Adjustment
Factor); 404 POLICY, supra note 132, at 2, 14 (incorporating EPA’s Audit Policy); 311 POLICY, supra note 132,
at 10, 13 (incorporating EPA’s Audit Policy).
140. 311 POLICY, supra note 132, at 15-16.
141. Incentives for Self-Policing: Discovery, Disclosure, Correction and Prevention of Violations, 65 Fed.
Reg. 19,618, 19,620 (Apr. 11, 2000).
142. Id.
143. EPA’s Audit Policy, EPA.GOV, http://www2.epa.gov/compliance/epas-audit-policy (last updated Feb.
2, 2015).
144. Incentives for Self-Policing, supra note 141, at 19,620.
In general, civil penalties that EPA assesses are comprised of two elements: the economic benefit
component and the gravity-based component. The economic benefit component reflects the economic
gain derived from a violator’s illegal competitive advantage. Gravity-based penalties are that portion
2015]
4/27/2015 3:07 PM
89
recommend criminal prosecution if certain conditions are met, including adopting
a “systematic approach to preventing recurring violations.”145
DOJ has a longstanding policy setting forth the factors to be considered in
deciding whether to bring a criminal prosecution for a violation of an
environmental statute.146 A key factor is the existence and scope of environmental
compliance programs.147 DOJ’s policy states that such a program should be
“regularized, intensive, and comprehensive,” and that prosecutors should give
particular attention “to whether the compliance or audit program includes
sufficient measures to identify and prevent future noncompliance, and whether the
program was adopted in good faith in a timely manner.”148
DOJ’s policy also provides hypothetical examples to illustrate how
prosecutors may apply these factors in environmental cases. The policy describes
an “ideal case” in which a company has an effective compliance program,
immediately discloses and corrects violations uncovered through a comprehensive
audit, disciplines those involved, strengthens its compliance program to prevent
recurrences, and cooperates with regulators. In this ideal case, the company
“would stand a good chance of being favorably considered for prosecutorial
leniency, to the extent of not being criminally prosecuted at all.”149 At the other
extreme, the policy presents a hypothetical company that conducts a narrowlyfocused audit only in response to a potential whistleblower’s threat and finds and
reports a violation, but fails to correct the problem or cooperate with regulators or
prosecutors. The policy concludes that the likelihood of prosecutorial leniency for
this company is “remote.”150
The Federal Sentencing Guidelines also provide that criminal penalties can
be reduced if an organization shows, among other things, that it has an effective
compliance program.151 Specifically, if an offense occurs even though a defendant
had in place an effective compliance and ethics program, the guidelines call for
the defendant’s “Culpability Score” used for sentencing to be reduced.152
Notwithstanding these long-established and well-known incentives for
compliance programs, a remarkable number of organizational defendants in recent
Clean Water Act criminal cases apparently had no compliance program at all. The
latest U.S. Sentencing Commission data files show that, in only one of twenty
cases involving organizations sentenced in federal district courts for Clean Water
of the penalty over and above the economic benefit. They reflect the egregiousness of the violator’s
behavior and constitute the punitive portion of the penalty.
Id.
145. Id.
146. DOJ Factors, supra note 106. Other factors include: (1) whether violations are voluntarily, timely,
and completely disclosed; (2) whether a violator cooperates with investigators and prosecutors; (3) the
pervasiveness of noncompliance; (4) whether a defendant has an effective system for internal disciplinary action;
and (5) any efforts to remedy ongoing noncompliance. Id.
147. Id.
148. Id.
149. Id.
150. Id.
151. U.S. SENTENCING COMM’N, GUIDELINES MANUAL § 8C2.5(f) (2014), available at
http://www.ussc.gov/sites/default/files/pdf/guidelines-manual/2014/GLMFull.pdf.
152. Id.
90
4/27/2015 3:07 PM
ENERGY LAW JOURNAL
[Vol. 36:69
Act offenses in 2013, “the probation officer indicated that the offender
organization had any type of compliance program, ethics program or policy in
effect before or at the time of the offense.”153
B. Elements of an Effective Compliance Program under Federal Enforcement
Policies and Guidelines
The Federal Sentencing Guidelines for organizational defendants identify the
basic elements of an effective compliance program as: (1) leadership commitment
and culture; (2) appropriate policies, standards, and procedures; (3) diligent hiring
and employee screening practices; (4) effective communications and training
practices; (5) reasonable monitoring and auditing practices; (6) appropriate
incentives and disciplinary measures; and (7) reasonable corrective and
preventative steps.154 The Sentencing Guidelines recognize that there is no “one
size fits all” for compliance, and provide that programs should be tailored to a
specific company’s operations, accounting for overarching factors such as the size
of the organization and the organization’s compliance history.155
EPA’s enforcement policies also address the elements of compliance
programs. EPA’s Audit Policy borrows from the Sentencing Guidelines in
describing the components of a “compliance management system” that will
qualify for the incentives offered under the policy.156 Similarly, EPA’s policy on
factors to consider in reinstating a party that has been disqualified, suspended, and
debarred from federal contracts emphasizes the importance of an effective
compliance program, and incorporates the Sentencing Guidelines program
elements.157
EPA’s Office of Enforcement and Compliance Assurance has developed a
model “compliance-focused environmental management system” (CFEMS) to be
imposed as injunctive relief in settlements with corporate defendants to address
violations caused by “management failures.”158 The CFEMS is based in part on
ISO 14001, an industry consensus standard for environmental management
systems. EPA’s guidance calls for the CFEMS to embody the “plan, do, check,
act” model for continuous improvement, which is a hallmark of ISO management
system standards.159
To be successful, a compliance program must be more than a one-time “check
the box” exercise to implement the components prescribed by governmental
153. U.S. SENTENCING COMM’N, ORGANIZATIONS CONVICTED IN FEDERAL CRIMINAL COURTS (Interuniversity Consortium for Political and Social Research, 2014-12-03) (2013), available at
http://doi.org/10.3886/ICPSR35347.v1.
154. U.S. SENTENCING COMM’N, GUIDELINES MANUAL § 8B2.1(b)(1)-(7).
155. Id. § 8B2.1 (Commentary).
156. 65 Fed. Reg. 19,618, 19,625 (Apr. 11, 2000).
157. EPA Policies Regarding the Role of Corporate Attitude, Policies, Practices, and Procedures, in
Determining Whether to Remove a Facility From the EPA List of Violating Facilities Following a Criminal
Conviction, 56 Fed. Reg. 64,785, 64,787 (Dec. 12, 1991) (“The hallmark of an effective program is that the
organization exercises due diligence in seeking to prevent and detect environmental problems or violations, or
criminal conduct.”).
158. Compliance-Focused Environmental Management System—Enforcement Agreement Guidance
(EPA-330/9-97-002R) 3-4 (Rev. June 2005).
159. Id. at 4.
2015]
4/27/2015 3:07 PM
91
policies and industry standards. First and foremost, the compliance program must
have strong and sustained support from the company’s leaders, from the C-suite
down to the line managers who are responsible for day-to-day implementation.
Leaders must set the correct “tone from the top” by clearly communicating that
compliance comes first. Leaders must also demonstrate their commitment to that
principle by reflecting compliance goals in corporate strategic planning and annual
budgeting, as well as daily decision-making. It is also incumbent on executive
leaders to clearly define compliance roles and responsibilities, and provide the
staffing and other resources needed for an effective compliance program.
Although compliance programs must be designed to address all of the
requirements that apply to a company’s operations, government policies
encourage a risk-based approach to prioritizing compliance activities. Risk
assessment involves evaluating both the likelihood that a violation will occur and
the severity of the impact caused by the potential violation.160 The Federal
Sentencing Guidelines suggest using outside experts on the theory that it is
difficult for any company to look at itself objectively.161 Industry associations,
working groups, experienced legal counsel, and outside consultants can help
evaluate compliance risks, provide the benefit of industry-wide “lessons learned,”
and benchmark a company’s policies and procedures against industry standards
and best practices.
User-friendly policies, procedures, and work practices are a keystone of
effective compliance programs. They should be developed with the input of
employees who must implement and comply with them. Companies should have
a carefully planned roll-out process that includes training for those most affected
by new or modified policies and procedures. Companies should monitor
implementation to assure the effectiveness of compliance procedures and training.
Auditing is an especially important feature of any compliance program.
Companies should conduct periodic audits of discrete substantive areas or
particular compliance procedures. They should also periodically assess the overall
compliance system itself. Like compliance programs themselves, audit programs
may vary depending on the size of the organization, potential risks, and liabilities.
Generally, effective audit programs require: (1) top management support; (2)
explicit audit function goals, objectives, and scope; (3) adequate audit function
staffing and training; (4) careful planning and scheduling; (5) clear reporting
procedures; (6) timely implementation of corrective and preventative measures;
and (7) quality assurance.162
160. U.S. SENTENCING COMM’N, GUIDELINES MANUAL § 8B2.1 (Commentary).
161. Id.
162. Sources of information on establishing good auditing programs include: Environmental Auditing
Policy Statement, 51 Fed. Reg. 25,004, 25,009 (July 9, 1986) (discussing “Elements of Effective Auditing
Programs”); Board of Environmental, Health & Safety Auditor Certifications, Performance and Program
Standards for the Professional Practice of Environmental, Health & Safety (EH&S) Auditing (2008) (providing
standards and guidance “for the proper design of an effective EH&S audit program and the management of the
auditing function”); ASTM E2107-6, Standard Practice for Environmental Regulatory Compliance Audits (a
fairly general standard focused on compliance auditing); and ISO 19011, Guidelines for Auditing Management
Systems (2d ed. Nov. 15, 2011) (designed for auditing EH&S management systems; part of suite of ISO standards
for corporate management systems).
92
4/27/2015 3:07 PM
ENERGY LAW JOURNAL
[Vol. 36:69
Good execution of an environmental compliance program should strike a
balance between incentives for performance and a consistently applied
disciplinary policy for violations. Bonus and award programs should be
established to incentivize progress toward compliance goals and performance
measures. When problems are uncovered, appropriate disciplinary actions should
be taken, accounting for the severity of any misconduct and a specific employee’s
disciplinary record, seniority, and responsibilities. Enforcement authorities may
take a dim view of the failure to sanction problematic employees or behavior. And
information on any misconduct and the resulting disciplinary action should be
disseminated to deter future problems, reinforce compliance standards, and show
that the company takes misconduct seriously.
Finally, a compliance program should be periodically updated to reflect new
requirements and to strengthen its effectiveness. Companies should review their
compliance programs on a regular cycle (annually for many companies) to
identify, evaluate, prioritize, and implement improvements.
C. Special Considerations for Energy Companies
Energy exploration, development, generation, and transportation entail
specific risks that should be addressed through both robust regulatory compliance
programs and strong operational risk management processes. In developing or
updating their regulatory compliance programs, energy companies should
consider recent or proposed changes in regulations affecting their operations, as
well as the government’s enforcement focus in recent years. For example, EPA
and the Corps have proposed a “clarification” of the definition of “waters of the
United States” for purposes of the section 404 program that industry observers
believe would substantially expand the reach of the program’s permitting
requirements.163 There have been a number of civil and criminal enforcement
actions against energy companies for alleged section 404 violations under the
existing regulations, and the already high risk of enforcement will only increase if
the section 404 program expands.
Energy companies also face particular risk of enforcement under section 311
of the statute for accidental releases of oil or hazardous substances. Compliance
with spill prevention, control and countermeasure rules promulgated under section
311 alone may be insufficient to guard against accidental releases and the
enormous penalties and clean-up liability that may ensue. Companies should
assure that construction materials and safety critical equipment meet applicable
technical industry standards. They should also implement thorough inspection
and maintenance programs and operational risk management procedures (e.g., prestartup safety reviews) to prevent accidents that could cause the release of oil or
hazardous substances.
Many energy companies also rely heavily on contractors, which can increase
the complexity—and therefore the risk—of their core operations. The role of
163. EPA and the Corps published a draft rule defining “waters of the United States” in April 2014.
Definition of “Waters of the United States” Under the Clean Water Act, 79 Fed. Reg. 22,188 (Apr. 21, 2014) (to
be codified at 33 C.F.R. pt. 328). The rule has been widely criticized and the House of Representatives has
passed the “Waters of the United States Regulatory Overreach Protection Act of 2014” to prevent the rule’s
progress. H.R. 5078, 113th Cong. (2014).
2015]
4/27/2015 3:07 PM
93
contractors was a focal point in the various governmental investigations—and
ongoing litigation—stemming from the 2010 Deepwater Horizon explosion and
oil spill in the Gulf of Mexico. As part of the federal government’s efforts to
reform offshore oil and gas regulation and oversight in the aftermath of that
tragedy, the Bureau of Ocean Energy Management, Regulation and Enforcement
(the successor agency to the Minerals Management Service and predecessor to the
Bureau of Safety and Environmental Enforcement) issued a rule requiring
operators to develop and implement Safety and Environmental Management
Systems (SEMS) for oil and gas operations in the Outer Continental Shelf.164 The
so-called “SEMS rule” also imposes requirements on operators related to
contractor oversight, which other sectors of the energy industry may wish to
consider in developing their own contractor management programs. The SEMS
rule requires operators to:

Develop procedures and verify that contractors: (1) have their own written
safe work practices;165 (2) are conducting their activities in accordance with
the operator’s SEMS program;166 and (3) have the skills, knowledge,
understanding, and ability to perform their assigned duties;167

Establish and implement a training program so that all personnel (including
contractors) are trained in accordance with their duties and responsibilities to
work safely and are aware of potential environmental impacts;168

Document: (1) contractor selection criteria (including an evaluation of the
contractor’s safety record and environmental performance);169 (2) an
agreement with the contractor on appropriate contractor safety and
environmental policies and practices before the contractor begins work;170 and
(3) that contracted employees are knowledgeable and experienced in the work
practices necessary to perform their job in a safe and environmentally sound
manner;171

Perform periodic evaluations of the performance of contract employees that
verifies they are fulfilling their obligations;172 and
164. U.S. Department of the Interior, Bureau of Ocean Energy Management, Regulation and Enforcement
(BOEMRE), Oil and Gas and Sulphur Operations in the Outer Continental Shelf—Safety and Environmental
Management Systems, 75 Fed. Reg. 63,610 (Oct. 15, 2010).
165. 30 C.F.R. § 250.1914.
166. Id. § 250.1914(c)(1).
167. Id. §§ 250.1914(c)(2), 250.1914(d).
168. Id. § 250.1915.
169. Id. § 250.1914.
170. Id.
171. 30 C.F.R. §§ 250.1914(b), 250.1915(d).
172. Id. § 250.1914(e)(1).
94

4/27/2015 3:07 PM
ENERGY LAW JOURNAL
[Vol. 36:69
Inform contractors of any known hazards at the facility where they are
working.173
In our experience, many energy companies are implementing comprehensive
contractor management programs that go well beyond regulatory requirements.
These programs typically include screening procedures to ensure that potential
contractors have (1) appropriate training, licensing, and certifications, (2) a good
safety record, and (3) no history of illegal activities or other misconduct.
Screening includes reference checks; internet searches; review of social media
websites; criminal background checks; and review of the federal System for
Award Management for individuals suspended or debarred from government
contracts and benefits, as well as applicable state suspension and debarment lists.
Potential contractors are usually required to complete a questionnaire relating to
their safety and compliance record, and certify in writing to the accuracy of their
answers.
Once selected, contractors should be contractually obligated to comply with
applicable laws, regulations, and company policies and procedures. Contractors
should also be required to promptly report environmental and safety incidents and
to provide access to files, facilities, and offices, and to cooperate with
investigations, inspections, and audits.
Companies should maintain a
comprehensive list of their approved contractors, and have clear procedures for
retaining the services of contractors that are not on the list. Contractors should be
regularly audited, monitored, and evaluated against regulatory and internal
company requirements, and should be subject to termination for significant
violations.
V. CONCLUSION
Prosecutors and EPA consider the energy industry to be a prime target for
investigation and enforcement. The broad sweep of the Clean Water Act creates
significant legal exposure for both companies and individuals, especially by
criminalizing simple negligence. While the sparse case law interpreting the Clean
Water Act’s negligence provision is vulnerable to challenge, the wisest course is
to avoid becoming a defendant in the first place by developing and implementing
robust compliance and risk management programs that have senior management’s
full backing, and that are regularly updated and policed.
173.
Id. § 250.1914(f).

minimizing risk under the clean water act

Transcription

Similar documents

SAMPLE ENGAGEMENT LETTER Dear Client:

Criminal identification technologies

RTTOIC Criminal Analyst - Camden County Police Department

Managing Regulators` Honey-Do Lists: Integrated Planning and EPA

District Sales Manager - Brandon

“How to Enter the Law Enforcement Challenge”

Document

Evolution Consulting, LLC For Parallon Workforce Solutions

Voter Guide

Southwest Illinois Filipino Basketball Club